Abstract
Mary Rogan, Prison Policy in Ireland: Politics, Penal-Welfarism and Political Imprisonment, Routledge, Oxon, 2011; 246 pp. (with index): 9780415616195, £30.99 (pbk)
Mary Rogan's book traces the development of penal policy in Ireland from 1922 onwards, and perhaps more significantly, explores the factors influencing the development of such policy. It identifies links between prison policy and social, economic, political and cultural developments within the state. In so doing, it provides both a historical narrative on and an analysis of policy formation in post-independence Ireland. The book's structure proceeds chronologically, with each substantive chapter devoted to a particular period of time (usually a decade). Scholarship from a variety of disciplines is intertwined with a wide range of archival sources to bring the story to life. Three key themes emerge: the securitization of imprisonment in response to subversive threats; the question of space; and stagnation in policy development (punctuated by the work of individual reformists).
Rogan explains that, from independence, the Irish government regularly used imprisonment to deal with Republican activity. Due to the objective being pursued (to counter threats to national sovereignty), imprisonment became a security tool. Strategies of criminalization, securitization and militarization resulted in persons claiming political status being held in harsh conditions. The use of internment and military imprisonment resulted in a determined and sustained campaign of resistance by Republican prisoners. Rogan details its various forms: internal organization; blanket protests; dirty protests; hunger strikes; riots; and escapes. Although Republican prisoners were typically unconcerned with the plight of ‘civilian’ prisoners, this book highlights the significant paradox that public reactions to key events related to Republican resistance resulted in some of the most profound reform measures that affected the use of imprisonment for ordinary prisoners. While Rogan notes that the focus on dealing with subversive threats deflected attention from other issues and was ‘entirely inimical to the formulation of long-term policy’ (p. 148), she cautions that the preoccupation with dealing with Republican prisoners was not the only reason for a lack of principled penal strategy. The insular and cautious nature of civil servants and capacity issues were also responsible for the lack of vision required to develop a progressive system.
For the most part, the Department of Justice maintained a conservative approach to penal policy development and was reluctant to conduct evaluations or engage with research. The official preference to maintain the status quo, or at best, incrementally improve conditions, was also attributable to pragmatic constraints caused by fiscal crises. In times of high unemployment and emigration (1930s, 1950s, 1980s and more recently), prison reform policy, unsurprisingly, found itself at the bottom of political priorities. The book draws attention to the fact that during periods of (relative) prosperity in the 1960s and 1990s, individual reformists (ministers and civil servants) initiated and injected much needed energy into penal reform projects. In the absence of dynamic leadership, however, the dominant political view was that it was necessary to expand the penal system to deal with the growing crime rate.
The Irish prison estate has expanded and contracted over the period under review. While capacity requirements increased significantly during times of unrest (due to the use of internment), it has risen significantly in recent times due to an increased crime rate. As a result, the prison estate has long been operating in an overcrowded state with deleterious effects on conditions. Even the widespread use of ‘doubling up’ and temporary release has been unsuccessful in addressing capacity issues in the overwhelmed estate. Yet the perception that crime should be addressed by increasing capacity has persisted in political circles, despite the lack of funding for significant capital projects. As with political imprisonment, the ‘dominance of space … deflected attention and resources from other issues’ (p. 191). As the book closes, the Irish penal estate contained more people than it ever had and was facing repeated criticism for poor conditions caused by severe overcrowding. Ultimately, Rogan concludes, penal policy development in Ireland has been characterized by a ‘lack of imagination to do punishment differently or see beyond considerations of space’ (p. 205).
The fluid and compelling prose in this book brings the intricacies of policy formation and the unique aspects of Irish politics and culture to life. It outlines the colourful context in which Irish penal policy took shape – from the widespread use of confinement by non-state institutions, to mass releases to celebrate religious occasions and audacious helicopter escapes. The thorough analysis provides a useful historical narrative and reinserts the question of agency into broader discussions about the socio-economic and cultural context of policy formation. This well-researched study contributes to penological literature through the ‘fusion of two types of analysis – policy and cultural’ (p. 215) and its warning against importing theory to understand the specificities of penal policy development in a distinct location.
There are a few areas in which the book could be improved. At points, it is assumed that the reader has knowledge of Irish persons, events and institutions. The book could benefit from greater consistency in relation to structure, increased cross-referencing, a time-line of key events and a clearer picture of the penal estate during each period. Finally, the book's title perhaps infers a more direct discussion of penal-welfarism in Ireland than the book contains. These comments should not, however, detract from the very real value of this book, and it is hoped that there will be a second edition.
From the outset, the reader is engaged to take a walk through Ireland's past in order to understand the political and social influences on penal law and policy within the state and to appreciate the lessons that can be learned for penal policy formation more generally. The book therefore contributes to scholarship in a way that has resonance beyond the Emerald Isle. Its warning against insularity caused by a failure to conduct or engage with research, in particular, should be taken on board by policy-makers worldwide.